Research Article “Welcome culture”: the emergence and transformation of a public debate on migration Florian Trauner1, *, Jocelyn Turton 2 1 Institute for European Studies, Vrije Universiteit Brussel, Belgium 2 College of Europe, Bruges, Belgium * E-Mail: [email protected] Abstract This article investigates the emergence and transformation of a debate on “welcome culture”. This concept has developed as part of a wider effort by the German government since 2005 to improve perceptions of immigration. In autumn 2015, the term entered mainstream public discourse when it became a point of reference for political, societal and media actors. These groups sought to promote a pro-refugee policy for humanitarian or economic reasons, or simply out of pragmatism. Even- tually, right-wing actors began to dominate the discourse in order to undermine the pro-refugee camp and approach. The discussion therefore reflects the struggles to define whether Germany and Austria are countries of immigration, or should even aspire to this title. Keywords Germany; Austria; welcome culture; discourse analysis; refugee crisis „Willkommenskultur“: das Entstehen und die Veränderung einer öffentlichen Debatte zu Migration Zusammenfassung Dieser Artikel untersucht die Veränderung und die Geschichte der öffentlichen Auseinandersetzung zur „Willkommens- kultur“. In den Jahren nach 2005 wurde dieses Konzept im Rahmen eines Plans der deutschen Regierung entwickelt, der darauf abzielte, die Akzeptanz von Einwanderung zu erhöhen. Im Herbst 2015 wurde „Willkommenskultur“ Teil einer brei- teren Debatte, als politische, gesellschaftliche und journalistische AkteurInnen sich für eine migrationsfreundliche Politik aufgrund von humanitären, wirtschaftlichen oder pragmatischen Gründen einsetzten. Der Diskurs zu Willkommenskultur wurde zusehends von rechtsgerichteten AkteurInnen dominiert. Sie benützten ihn, um dem Pro-Refugee Camp und einer liberalen Politik die Legitimation abzusprechen. Die Debatte zur Willkommenskultur spiegelt daher die gesellschaftlichen Spannungslinien wider, inwieweit Deutschland und Österreich Einwanderungsländer sind bzw. sein sollen. Schlüsselwörter Deutschland; Österreich; Willkommenskultur; Diskursanalyse; Flüchtlingskrise Acknowledgement by Florian Trauner: The Special Issue including this article is dedicated to the 60th anniversary of Sieg- linde Rosenberger. Sieglinde has been a colleague, mentor and research collaborator of mine. Her work and her way of deal- ing with students and colleagues have been an important source of inspiration for me. Happy birthday and I wish you many more years of joy and fun in research. Acknowledgement by both authors: We would like to thank Astrid Mattes, Jeremias Stadlmair, and the referee for construc- tive and useful comments on earlier versions of the article. The authors have declared that no competing interests exist. March 31, 2017 I innsbruck university press, Innsbruck OZP – Austrian Journal of Political Science I ISSN 2313-5433 I http://oezp.at/ Vol. 46, issue 1 I DOI 10.15203/ozp.1587.vol46iss1 OPEN ACCESS 34 F. Trauner, J. Turton: Welcome culture (Willkommenskultur) I OZP Vol. 46, Issue 1 1. Introduction guage (e.g. Fairclough 2013; Gee 2014). Given the focus on a migration-related subject, the article is particu- The year 2015 has been marked by a series of migrant boat larly reliant on the “Vienna school of discourse anal- tragedies in the Mediterranean Sea and unusually high ysis”. This sociological approach developed out of an numbers of migrants departing from Turkey to Greece investigation of the complex and multilayered reac- and moving further North. The situation rapidly devel- tions to immigration and multiculturalism in Austria oped into a full-blown crisis for the European Union (see at the beginning of the 1990s. Spearheaded by Ruth detailed Trauner 2016). Germany and Austria have been Wodak, it sought to identify certain linguistic pat- particularly scrutinised in terms of their policy decisions terns and trends within a multiplicity of documents and public sentiment towards migration (e.g. Rosenberger and sources related to the topic of migration, in an 2016; Schneider 2016). By the end of 2015, Germany had effort to extrapolate certain basic features underpin- the highest number of first time asylum applications ever ning general attitudes towards this phenomenon (e.g. registered (441,800 or 35 percent of all applications in the Wodak/Köhler 2010; Wodak/ Matouschek 1993). EU). In Austria around 85,000 migrants submitted their The Vienna School’s theoretical approach to dis- asylum application (Eurostat 2016). Central to both Ger- course analysis involves two principal strands of many and Austria’s response has been the phenomenon of argument: the identification of particular macro- “welcome culture” (“Willkommenskultur”). It has become a strategies at work in these documents, and the more salient subject of public discourse and a symbol of the civil micro linguistic features underlying their composi- society initiatives launched in the country at various stages tion and transmission. Through a scientific dissec- throughout the crisis. While similar initiatives were pres- tion of certain documents at the time, Wodak and her ent in other EU member states, the two countries became colleagues seek to explain the relative power of com- standard bearers for this outpouring of popular support peting influences upon the public mindset – ranging towards accepting the waves of migrants making their way from elements of political discourse, to everyday con- up through Europe’s southern corridor. versations relating to issues of migration and race, Public discourse is the backbone of any negotiation on overheard by her colleagues on the streets of Vienna. membership, participation and belonging, the common theme of this Special Issue. This article aims at decon- Through discourse, social actors constitute structing the competing influences behind the emergence knowledge, situations, social roles as well as iden- of the discourse on welcome culture in the autumn of 2015. tities and interpersonal relations between various The research will explore the concepts and definitions used interacting social groups. In addition, discursive in the context of this debate. It will discuss whether this acts are socially constitutive in a number of ways: discourse amounts merely to a social media bubble or rath- first, they play a decisive role in the genesis, pro- er to a more profound shift in the German and Austrian na- duction and construction of certain social condi- tional perspectives towards migration. tions (van Leeuwen/Wodak 1999, 92). In terms of timeframe, the focus of the analysis is on the public debate in the context of the 2015 refugee crisis. A key distinction between Wodak’s school and our ar- Notwithstanding this, the article will also investigate the ticle is that the Vienna School chooses to focus exclu- emergence of this discourse (post-2005) and its transfor- sively on the growth of negative perceptions – princi- mation in 2016. In terms of structure, the article starts by pally on the issue of what she terms “neo-racism”. By adapting the “Vienna school of discourse analysis” to the contrast, this article seeks to understand how a posi- present research interest. It then shifts attention to how the tive discourse on migration could gain momentum discourse has become popularised in the cases of Germany in the context of the 2015 refugee crisis. It identifies and Austria. The research also looks at the extent to which the factors that have allowed a pre-existing concept the concept of “welcome culture” has been of relevance to gain prominence and dominate the public debate, outside these two countries. It ends by investigating how albeit only for a limited period of time. the discourse has changed since the public attitude became Our argument is that welcome culture as a con- more hostile towards the arrival of new migrants. In terms cept gained such a relevance in the public debate as of methodology, it scrutinises primary and secondary it allowed different societal, media and political ac- sources relating to the concept of welcome culture. tors to promote a certain perception of migrants. Hu- man rights-oriented and pro-refugee actors used it to gain societal support for their cause. It also became 2. Adapting the Vienna school of discourse analysis a handy concept for actors with more economic and pragmatic motives that primarily sought to make a This work is informed by discourse analysis, which seeks to virtue out of necessity. In fact, there seems to be quite study in a critical fashion the meaning and usage of lan- some overlap in the discourse dynamics of the 1990s F. Trauner, J. Turton: Welcome culture (Willkommenskultur) I OZP Vol. 46, Issue 1 35 and 2015, regardless of their distinct objectives. The use would therefore appear to inspire extreme arguments of welcome culture with a positive connotation was also on both sides, and the same core rhetorical features thus meant to bolster national identity, much in the same way seem to recur. that right-wing propaganda has consistently sought to do on the topic of migration. The Vienna school identifies the following hallmarks 3. Welcome culture – the emergence of a concept of prejudiced debate surrounding the issue of migration: The term “welcome culture” has become inextricably – Emphasis on unifying common features/shared sor- linked to Germany’s and Austria’s idiosyncratic ap- row or worries (for example, at a